EVACUATION

SUPPORT.
GUIDE

A Guide
for
Peace Corps
Staff

Volunteer Safety Council

January 2000
• FOREWORD
Over the past 39 years, the Peace Corps' operations throughout the world have been dis­
rupted many times by events that require Volunteers and staff members to be evacuated from
their sites or countries to ensure their safety. Between 1993 and 1999, the Peace Corps safe­
ly evacuated staff and Volunteers from more than 20 posts. Each of these events was differ­
ent, and presented its own distinct challenges. However, all required the cooperative efforts
of several offices within the Peace Corps, and often included coordination with other U.S.
Government departments, host country authorities, and other organizations.

This edition of the Evacuation Support Guide (2000), produced by the Volunteer Safety
Council, is designed to provide guidance to headquarters and field staff to prepare for,
respond to, and recover from an evacuation of Volunteers and staff. The guide represents the
combined experiences and lessons learned by many individuals in various headquarters offices
and overseas posts. It is designed to complement existing crisis-management resources at
post, which include the Crisis Management Handbook, the Peace Corps Manual, and the post
Emergency Action Plan. Country Directors are urged to familiarize themselves with the pro­
cedures set forth in this document and to share its contents with appropriate staff and
Volunteers before a crisis occurs.

•
Under the best of circumstances, the evacuation of a post is a difficult, complex, and some­
times traumatic experience. I believe that the guidance and procedures contained in this doc­
ument will contribute to the effective management of a post's evacuation. Thank you for your
continued efforts as we work together to maintain the health, safety, and security of all
Volunteers and staff.

Mark L. Schneider
Director

 INTRODUCTION

Since its beginning in 1961, Peace Corps has found it necessary from time to time to
evacuate Volunteers and staff from a country and to suspend Peace Corps operations. The
evacuations have most often occurred due to political unrest or civil war, and have usu­
•
ally been followed by the indefinite suspension of the Peace Corps program in the evac­
uated country. On occasion, however, a natural disaster or criminal activity has caused
Peace Corps to evacuate all or some Volunteers from country - or withdraw Volunteers
from their sites to another location in country - only to return and continue operations
once the danger has passed. I

This Evacuation Support Guide provides guidance for all Peace Corps staff who may be
involved in evacuating Volunteers from a country or conducting the Transition Conference
that follows an evacuation. It discusses, in successive chapters, the various stages of the
evacuation process - Preparation; Early Alert (Standfast and Consolidation); Evacuation;
Transition Conference; and Aftermath - and the tasks that must be accomplished dur­
ing those stages.

The staff in the evacuating country and its respective Region in Washington have pri­
mary management responsibilities during the preparation, early alert, and evacuation
stages of a crisis. Their roles and responsibilities are outlined in Chapters I, II and III.

•
Other Peace Corps offices provide essential support as a crisis develops and take on crit­
ical roles once the decision to evacuate is made. Their roles are detailed in Chapter III,
along with those of the Post and the Region.

Immediately following an evacuation, a team drawn from Pc/Washington and overseas

staff conducts a Transition Conference for evacuated Volunteers and staff. This Conference
is discussed in Chapter IV. Finally, several issues arise in the longer-term aftermath of an
evacuation, which are discussed in Chapter v.

Each evacuation will present unique challenges. Experience has taught, however, that
preparation, a clear division of responsibilities, and the use of established protocols facili­
tate the management of an evacuation. The Volunteer Safety Council urges all staff to
become familiar with this Guide, and to use it as a road map in the event of an evacuation.

1 This Guide uses che Cecm "Volumed' co cefer co boch Volunceers and Trainees. for edicorial ease and because che distinccions

between Volunceers and Trainees are largely irrelevanc fur purposes of evacuacions.

•
TABLE OF CONTENTS

A. The Post's Duties 9

B. The Region's Duties 10

A. Standfast 11

1. The Post's Duties During Standfast 11

a. Post Contacts All Volunteers 11

b. Post Reviews the EAP and Consolidation Plans 11

c. Post Keeps in Contact with the Embassy 12

d. Post Coordinates with Region 12

2. The Region's Duties During Standfast 12

12

a. Region Communicates with Department of State

b. Region Keeps senior Staff Informed 12

c. Region Coordinates with Post 12

d. Region Provides Specific Information to OSS, 13

Communications, and Congressional Relations

B. Consolidation 13

1. The Post's Duties During Consolidation 13

a. Post Notifies Volunteers of Consolidation 13

b. Post Coordinates Medical Records and Needs 14

c. Post Coordinates with u.S. Embassy and PClWashington 14

d. Post Informs and Advises Staff and Host Country Officials 15

2. The Region's Duties During Consolidation 15

a. Region Communicates with Department of State 15

b. Regional Director Forms Task Group of Representatives from 16

Pc/Washington Offices, Holds Daily Briefings, and Coordinates

Activities of Offices

c. Regional Director Develops Contingency Plans and 17

Makes Recommendations to the Peace Corps Director

A. The Decision to Evacuate

1. When the U.S. Embassy Orders a Departure

2. When the U.S. Embassy Does Not Order a Departure

19

19

19

•
B. The Post's Duties During Evacuation 20

1. Post Informs and Evacuates Volunteers 20

2. Post Coordinates Shipment of Medical Supplies and Records 21

3. Post Secures Office and Suspends Program 21

C. The Region's Duties During Evacuation 22

1. Region Coordinates Communications Between P(/Washington, 22

Department of State, and the Evacuation Staff

2. Regional Director and Peace Corps Director Handle 22

Policy Decisions and Make Contingency Plans

•
3. Region Coordinates Activities with All PC/Washington Offices 22

a. Office of Special Services 23

b. Office of Medical Services 23

c. Office of Communications 24

d. Office of General Counsel 24

e. Office of Congressional Relations 24

f. Office of Planning, Budget and Finance 24

g. Office of Placement 24

h. Office of Transportation 25

i. Office of Administrative Services 25

j. Volunteer and Staff Payroll Services 25

k. Returned Volunteer Services 25

I. Office of Contracts 26

m. Peace Corps Staff in Receiving Country 26

4. Region Plans the Transition Conference 26

•
 A. The Transition Conference Team 28

1. Transition Team Leader 28

2. COS Workshop Facilitator 28

3. Administrative Support 29

B. Content of a Transition Conference 29

1. Debriefing and Counseling 30

2. Medical Sessions 30

3. Administrative Information 30

4. Placement Information 30

5. Employment, career Planning, and Re-entry 31

•
A. Administrative and Logistical Tasks

1. Assistance to and Transfer of Staff

2. Closing Post
32

32

32

3. Recovering Personal Effects and/or Settling Claims 33

B. Debrief of Evacuation 33

C. Providing Support to Transferred Evacuated Volunteers 33

•
I. PREPARATION: The Emergency Action Plan

The most critical component of preparation for a possible crisis situation is the Emergency
Action Plan, or EAP. The EAP is a country-specific document that sets forth a detailed plan
of action to be followed by Post in the event of various emergency situations, including an
evacuation.

The EAP should contain detailed instructions on how to manage the early alert stages
of a crisis and what to do if the decision to evacuate is made. It describes all elements
of the Post's evacuation plan - including how Volunteers will be contacted, where
they will be directed to gather, management of health and safety concerns, and who
will bear responsibility for transportation, security, and Post closing. Instructions on

• how to develop an EAP may be found in the Crisis Management Handbook, which is
available at all Posts or through the office of the Coordinator of Volunteer Safety and
Overseas Security.

The EAP is a living document. It requires regular revision as staff and Volunteers
come and go and as conditions change within the country. Each Post must review,
test, disseminate, and update its EAP yearly. Testing includes actual drills and dry
runs involving communicating with Volunteers, the Embassy, and other organiza­
tions to assure that all involved understand their roles and responsibilities. Country
Directors should ensure that Volunteers are conversant with the EAP through ori­
entations at pre-service and in-service trainings, and should routinely exchange
EAPS with CDS in nearby countries that might be used as safe havens, overland exit
points or evacuation sites. The Post is also responsible for submitting the EAP to
the U.S. Embassy and the Region in PCfWashington for review and approval after
each revision.

•
Evacuation Support Guide' January 2000 9
 The
Emergency
Action Plan
•
The CDU will playa critical in facilitating communication, responding to Post's
needs, and providing guidance during an evacuation, and therefore should be con­
versant with all aspects of the Posts' evacuation plans and capabilities.

10 Evacuation Support Guide' January 2000

•

• II. EARLY ALERT: Standfast &. Consolidation

Events that precipitate an evacuation may come as a complete surprise, or may build more
slowly to a crisis point. Peace Corps EAPS use a three-stage model to describe the states of
alert during a crisis: "standfast," "consolidation," and "evacuation." This guide follows the
three-stage model and identifies the characteristics and responsibilities that correspond to
each stage and the criteria necessary to progress to the next stage. In realiry, however, the
lines between standfast, consolidation, and evacuation are not always clear. Moreover,
depending upon how fast events are moving, one or more stages may be skipped, or some
of the tasks will simply not be able to be accomplished.

A. STANDFAST
"Standfast" is the first stage of alert during a potential crisis. The CD makes the deter­
mination to call a standfast, when, in his or her estimation, events occurring in coun­
try or elsewhere warrant heightened attention to safery and security. The call for
standfast requires that each and every Volunteer be located, contacted, and told to
await instructions. Standfast is a recognition that Peace Corps may shortly take
unusual measures to protect its Volunteers- such as moving them from their sites or
out of the country-but that the situation does not yet require such measures.

•
a. Post Contacts All Volunteers
Post should contact all Volunteers to confirm their location and status (at
site, out of country, on annual leave, etc.). "Contact" with a Volunteer should
not be considered to have been made until the Volunteer confirms receipt
and understanding of the message. Post should inform the Volunteers that a
standfast has been called and tell them to stay at their sites for further
instructions and/or to contact Post regularly for updates. The importance of
taking safety precautions and of being reachable throughout the standfast
phase should be impressed upon the Volunteers.

b. Post Reviews the EAP and Consolidation Plans

•
Once a standfast is called, Post should review the EAP and the consolidation
points in light of the particular situation faced. Is the plan practical, given the
circumstances? Do the consolidation points make sense in light of unfolding

Evacuation Support Guide· January 2000 11

Standfast and
Consolidation
events? Are resources in place at consolidation points to support the
Volunteers? Are there matters that the EAP does not address that now need to
be handled? An extended standfast stage may be stressful, but will provide the
opportunity to tighten up or test the EAP.
•
c. Post Keeps in Contact with U.S. Embassy
Communications with the U.S. Embassy during a crisis and/or an evacua­
tion are critical, may be sensitive, and should be established at the earliest
stage of a potential crisis. Post should exchange information with the U.S.
Embassy as it becomes available and consult about next steps.

d. Post Coordinates with Region

Post should keep the Region fully updated about events as they unfold.
Post will need to coordinate with the Region to ensure the Region is fully
informed as to the location and status of all Volunteers, including those out
of the country on leave or medevac. It should also work with the Region to
identify potential events or developments that might trigger a move to the
next stage of alert ­ consolidation ­ or to evacuation.

•
a. Region Communicates with Department of State
During the standfast stage, the Region should be in contact with DOS to
exchange information about events and plans. Communication at the early
stages of a crisis may be critical to a smooth working relationship during
later stages.

b. Region Keeps Senior Staff Informed

The RD should ensure that the Director of Peace Corps and senior staff are
fully informed about the situation, the actions taken by the post and the
Embassy, and possible next steps. Depending on the volatility of the situa­
tion, the RD may hold or send out daily briefings.

c. Region Coordinates with Post

During this early alert stage, the Region should coordinate with Post to

identify the potential events or developments that would trigger a move to

•
12 Evacuation Support Guide· January 2000
• the next alert stage: consolidation. This will facilitate decision-making and Standfast and
assure that, in the event of a break-down in communications, the Region Consolidation
and the Post may independently take action based on prior agreements and
understandings. The Region should also obtain regular updates from Post
as to the location and status of all Volunteers.

d. Region Provides Specific Information to the Office of Special services (OSS),

Office of Communications, and Office of Congressional Relations
At the standfast stage, the Region should provide specific information to
ass, the Office of Communications, and the Office of Congressional
Relations so that they can manage calls from the press, government offi­
cials, and families who have heard news of the crisis and become concerned.
The CDU is responsible for providing ass with an accurate list of all
Volunteers and their locations and for referring all calls from Volunteers'
family members to ass.

B. CONSOLIDATION
"Consolidation" is the stage at which Volunteers are consolidated at pre-determined
locations for possible evacuation. The move to consolidation represents an appraisal

•
that the potential for danger has escalated and an evacuation of Volunteers and staff
from country is possible. Consolidation allows Peace Corps to better manage the
safety, security, communication with, and transport of the Volunteers should evacu­
ation become necessary. The Country Director, in consultation with the Embassy
and the Regional Director, make the decision to consolidate. The CD is responsible
for overall management and coordination of consolidation efforts.

a. Post Notifies Volunteers of Consolidation

The CD or designated country staff should notify all Volunteers and tell
them to proceed to a designated assembly point. It is important that
Volunteers understand that the extraordinary nature of events requires
strict adherence to instructions. The EAP should include contingency plans

•
for communicating with Volunteers if the normal means of doing so are
unavailable.

Evacuation Support Guide· January 2000 13

Standfast and
Consolidation
While the information given to Volunteers will vary depending upon the
circumstances, they should, at a minimum, be told
•
•
•
Where to go and how to get there
To refer to their EAP for guidance
The time and manner of next contact
•
If time permits, it is also helpful to include the following information from

the EAP:

• What to bring and what to leave

• To make a list of personal anicles left behind and designate someone

to take custody

• What to tell landlords, counterparts, supervisors and friends

• How to dispose of medical kits

b. Post Coordinates Medical Records and Needs

The CD and PCMO should ensure that:
• Health records, medications, and necessary supplies are prepared for

transfer out of the country

• Volunteer medical needs are communicated to and coordinated with

OMS in Washington and the PCMO in the safe haven country

c. Post Coordinates with U.S. Embassy and PC/Washington

Communication and coordination between the CD and the Embassy during
a crisis and potential evacuation are critical. The CD, a member of the

Country Team, typically will be party to the deliberations at the Embassy

regarding the possible need for evacuation. The CD should inform the

•
Embassy when a decision to consolidate has been made, and keep the

Embassy informed as to the status of the consolidation.

Tensions can run high during a crisis, and the CD and Ambassador may find

themselves at odds about the best way to proceed. A strong CD-Ambassador

relationship will facilitate an orderly evacuation, but even the best relation­

ship can break down under competing demands and multiple stresses. It is

essential that the CD have frequent and direct communication with the

Embassy, as well as direct, private communication with the Region through­

out the crisis period and evacuation process.

Post must keep the Region fully informed as to the confirmed location and

status of the Volunteers and as to the crisis situation, so that the Region,

OSS, and Communications can provide consistent and accurate information

to families and the press. Post should provide a daily Volunteer status

repon that details the location of each Volunteer, updated as necessary. In

addition, the CD should consult with the Region to identify potential

•
events that, should they occur, might trigger a decision to move from con­
solidation to evacuation.

14 Evacuation Support Guide' January 2000

• d. Post Informs and Advises Staff and Host Country Officials
The CD should, at the earliest opportunity, review staff roles and responsibili­
ties - which are articulated in the EAP - with the staff. The CD should also
be aware that staffsafety and employment status will be sources ofanxiety. The
CD should provide regular staff updates as the situation develops and, if time
Standfast and
Consolidation

permits, explain to both V.S. and FSN staff their options and rights as employ­
ees. The following issues may arise:
• Duties and expectations of staff during and after evacuation
• Implications for staff of suspension of program, including severance
payments and possible post-evacuation employment opportunities
with Peace Corps
• Family safety concerns
• Payment or severance for staff's personal employees, such as cooks,
guards, and gardeners
At the consolidation stage, the CD will also have to determine which coun­
terparts and host country officials should be contacted and what they should
be told regarding Peace Corps' plans. This should be done in coordination
with the V.S. Embassy.

•
a. Region Communicates with Department of State
The Region should continue to be in communication with OOS, and with
other federal agencies as appropriate, during consolidation. DOS may estab­
lish a Task Force at its Operations Center to monitor the crisis. If so, the
Region should assign Peace Corps staff members to represent the Peace
Corps on a 24-hour basis and attend OOS Task Force meetings, as appropri­
ate. These representatives will keep Peace Corps informed about what is hap­
pening at OOS, and oos updated on Peace Corps' plans. Senior Peace Corps
staff may also attend State Department Task Force meetings and interagency
CVITS meetings.

•
Evacuation Support Guide' January 2000 15
Standfast and
Consolidation
b. Regional Director Forms a Task Group of Representatives from
PC/Washington Offices, Holds Daily Briefings, and Coordinates Activities
of Offices
The Region should contact concerned PC/Washington offices - those that
have a role to play in the evacuation or Transition Conference - and
•
request that a representative from each office attend daily briefings. This
task group is chaired by the RD, and will meet daily or as deemed appro­
priate by the RD, for updates on the status of the crisis, consultation, and
coordination of suppon activities. It should include:
• Staff from the Region:
Regional Director
Chief of Operations
Chief Administrative Officer
• Coordinator for Volunteer Safety and Overseas Security
• Associate Director for Volunteer Suppon
• Representatives from:
Office of the Director
Office of Special Services
Office of Medical Services
Office of Communications

•
Office of General Counsel
Office of Congressional Relations
Office of Planning, Budget, and Finance
Office of Inspector General
As circumstances require, representatives from:
•
Office of Placement
Office of Transponation
Office of Administrative Services
Office of Volunteer and Staff Payroll Services
During consolidation, and through the evacuation and the Transition
Conference, each of these Peace Corps offices will have roles and responsibil­
ities. The Region, through the daily task force meetings, should coordinate
these activities, so that all panicipants are aware of what is being done in
other offices, evetyone is working from the same information, work is not
duplicated or overlooked, and the Region itself is kept current on the status
of various tasks. The tasks to be undenaken by the different PC/Washington
offices and the staff in the receiving countty are detailed office by office in
Chapter III (Evacuation), at C.3 (Region Coordinates Activities of All
PC/Washington Offices).

16 Evacuation Support Guide· January 2000

•

• c. Regional Director Develops Contingency Plans and

Makes Recommendations to the Peace Corps Director
The Regional Director bears responsibility for developing contingency
plans, identifying options, and making recommendations to the Peace Corps
Director as to a course of action. The daily briefings of the task group will
Standjast and
Consolidation

provide a forum for consultation with, and input from, others with informa­
tion and expertise helpful in making these decisions. The task group should
be kept informed as these decisions are made, so that correct and consistent
information is communicated to those involved in executing the decisions.
The following matters should be addressed at this stage:
• Identify developments that might warrant a decision to evacuate.
While it is not always possible to determine, in advance, what devel­
opments might justify a decision to evacuate, and while it may be
necessary, once the developments occur, to reconsider the original
judgment, it is a useful exercise to discuss and consider the sorts of
indicators that will provide benchmarks for decision-making.
• Evaluate whether the Embassy's and Department of State's evalua­
tion of the situation corresponds to and meets Peace Corps' needs.
• Decide where Volunteers will be taken if evacuated. Evacuation
sites and sites for Transition Conferences have generally been in a near­
by Peace Corps country, though Volunteers have on occasion been

•
evacuated directly to the United States. In selecting the initial site to
which the Volunteers will be evacuated and the Transition Conference
site consideration should be given to a number of issues, including:
available transportation
safety and medical considerations
available support, resources, and staff
in the receiving country
size and composition of the evacuee population
degree of trauma evacuees have undergone
or are expected to undergo
anticipated length of program suspension
• Decide the timing and mode of transportation for the evacuation.
Circumstances will dictate available options for transporting
Volunteers out of the country and whether Volunteers will be evacuat­
ed in one large group or in several smaller groups.
• Decide which staff will accompany Volunteers and which will
remain at Post. In addition to the post management and Volunteer
support needs, circumstances of the evacuation may restrict host coun­
try and third country national staff movement from country to country.
• Decide what staff support from Washington or the field is needed
in the receiving country and who will lead and run the Transition
Conference. (See Chapter IV, "The Transition Conference.")

• Evacuation Support Guide· January 2000 17

Standfast and
Consolidation
• Determine what information will be released to the press, to fam­
ilies, and to Congress, and how that information should be presented
and disseminated. It may be helpful to script talking points and dis­
tribute them to all those who may be talking with families or others
outside the Peace Corps.
•
• Evaluate the impact of events on upcoming pre-service trainings and
Invitees.
• Decide whether the program will be suspended temporarily or
indefinitely. In some circumstances, the danger causing the evacuation
is anticipated to pass within a short period of time. In others, there is
little or no hope that the program will be able to continue in the evac­
uated country in the foreseeable future. Sometimes, it is difficult to tell
whether the Peace Corps program might be able to resume. Prolonged
uncertainty is difficult and stressful to manage. Therefore, the Regional
Director should recommend in writing to the Peaec Corps Director a
deadline for deciding whether the program will be suspended indefi­
nitely or the Volunteers returned to country, and determine criteria on
which to base this decision.
• Determine the options to be offered to Volunteers after evacua­
tion if the program is not suspended. When all Volunteers are evac­
uated from a country and the Peace Corps program is suspended indef­

•
initely, the Volunteers are deemed to have completed their service in
that country and are accorded cos status. See Manual Section 284,
paragraph 6.0, which extends cos to Volunteers and Trainees "who are
evacuated from their country ofservice." There are, however, situations
in which the entire Peace Corps program is not affected by an evacua­
tion. Some or all of the Volunteers in country may be temporarily evac­
uated to another site within or outside the country and, after the dan­
ger has passed, may be able to return to their original sites or to new
sites within the country. In such cases, questions may arise whether the
cos status should be granted to any and all Volunteers who do not wish
to return to country. If this occurs, the Regional Director should pre­
pare a memorandum setting forth the issues, outlining the options,
and making a recommendation as to a particular decision.

18 Evacuation Support Guide· January 2000

•

•
III. EVACUATION

A. The Decision to Evacuate

The decision to evacuate Volunteers from country and to suspend a Peace Corps pro­
gram is made by the Peace Corps Director with advice and information from the RD,
the CD, the Embassy, and the Department of State. The decision is driven by Peace
Corps' evaluation of its abiliry to provide for the safety and securiry of its Volunteers
and maintain a viable program in country. The decision is also informed by - and
sometimes necessitated by - the Embassy's decisions regarding the U.S. mission.

1. When the u.s. Embassy Orders a Departure

The U.S. Ambassador in each country has the authoriry to order the departure
of all official U.S. government personnel and their families. When the Embassy
orders a departure, Peace Corps U.S. direct hire staff are among those who are
required to leave the country. It follows, then, that the Volunteers must be evac­
uated, as they cannot be supported without staff. Under an ordered departure
the Peace Corps has no choice but to evacuate its Volunteers even if in its own
estimation the Volunteers are safe.
The evacuation of Peace Corps Volunteers can be the most challenging aspect of
an ordered departure, as Volunteers, unlike official Americans, are usually locat­

• ed outside the capital and may not have ready means of communicating with
the capital. A delay in getting Volunteers safely from their sites can delay the
departure of other official Americans or the Ambassador if the mission is being
closed down. If the U.S. military is assisting, the CD will also encounter issues
arising from Department of Defense responsibilities and protocols. For these
reasons, it is critical to maintain close communication, coordination and coop­
eration with the Embassy in country and with DOS in Washington.

2. When the u.s. Embassy Does Not Order a Departure

The Peace Corps may decide to evacuate its Volunteers when the Embassy has
not ordered a departure. If the U.S. Ambassador concludes that the situation does
not necessitate an ordered departure, he or she may decide to authorize, but not
compel, the departure of certain mission employees and family members. Under
an "authorized departure," Peace Corps staff are free to stay or leave the country
as the Peace Corps determines appropriate.
As an independent agency, Peace Corps has the right to evacuate and suspend or
close a program based on the judgment of its staff. Thus the Peace Corps may
make - and has made in the past - a unilateral decision to evacuate, even
though the Ambassador may have decided that departure is not necessary or
advised for the mission generally. When this occurs, the complexities of the

•
Peace Corps-DOS relationship are highlighted. The Ambassador, and possibly
DOS in Washington, may not be supportive of Peace Corps' decision. They may

Evacuation Support Guide' January 2000 19

Evacuation
be concerned about the message such a decision sends to the host government or
about its impact on the morale of the American community. An ongoing, strong
and open relationship between the CD and the Ambassador is crucial to accom­
plish an evacuation, but may not guarantee agreement or support.

When evacuating a country in the absence of an order to depart, the Director of

•
the Peace Corps will formally notify the Secretary of State. The Regional

Director is responsible for providing information to the counterpart Bureau at

DOS of the Peace Corps' intentions.

1. Post Informs and Evacuates the Volunteers

Once the evacuation decision is made, the central task is to inform and then

•
evacuate the Volunteers as fast and safely as possible. How that is accomplished

will vary with the circumstances; planning and decision-making at this stage

requires flexibility and innovative thinking. The EAP may not anticipate all

the issues that arise. Events may be moving so quickly that there is no time for

consolidation. Missing or uncooperative Volunteers, failed communications,

unreliable modes of transportation, and unforeseen dangers are all potential

problems. CDs have on occasion had to go to extraordinary lengths in marshal­

ing resources and transportation to get Volunteers out - making use of mis­

sionaries, for example, hiring planes or helicopters, and coordinating with NGO

or private U.S. corporations.

When staff contacts the Volunteers to tell them to evacuate, staff should pro­

vide as much information about the evacuation as possible - where Volunteers

will be sent, how they will get there, what they can expect when they arrive,

etc. It is not always possible to provide Volunteers with a full explanation of

their status and entitlements before leaving country, due to the exigencies of the

situation and the fact that some decisions - such as whether the program will be

suspended temporarily or indefinitely - may not have yet been made.

Volunteers should be assured, however, that their options will be fully explained

once they are all safely out of the country.

20 Evacuation Support Guide' January 2000

•

•
2. Post Coordinates Shipment of Medical Supplies and Records

The PCMO from the evacuating country should:

• Arrange transport of all Volunteer medical records
(health jackets and WHO cards)
• Prepare to take to the evacuation site a well-stocked first aid kit, which
Evacuation

should include Volunteers' prescription medications and an adequate sup­

ply of malaria prophylactics and other medications, as needed
• Bring forms for cos history and physicals, a cos checklist
and other pertinent cos forms
• Accompany the last group of Volunteers to the evacuation site
The CD and staff are responsible for packing and sending necessary office records
and supplies to the evacuation site. Supplies that should be taken, if possible,
include:
• Contents of the safe
• Letterhead
• Volunteer passports
• cos packets
• Extra cash
• Zip drive and back-up of critical financial and other computer records
• Volunteer personal files

• • Sample Description of Service templates

• Satellite phones

3. Post Secures Office and Suspends Program

The CD should secure the Post to the extent possible and arrange for remaining
HCN staff members or the Embassy to conduct necessary Peace Corps business
until the program resumes or other arrangements can be made. The CD should
also contact the host country government, and community officials to the extent
possible, to inform them that the Peace Corps is evacuating its Volunteers and
suspending the program. If circumstances permit, the CD should:
• Tum over classified documents and imprest fund cash and vouchers to the
Embassy administrative officer. If this is not possible, the imprest fund
should be carried by an authorized staff member to the evacuation site.
• Turn in vehicles and property records to the Embassy General Services
Officer.
• Secure Peace Corps buildings and leave keys with the Embassy GSO.
• Provide the Embassy with a list of current leases and contracts for pay­
ment purposes; if necessary, arrange for contract and lease termination
notices.
• Do a final cash count and submit a final Form 365.

• • Identify local payments that need to be made.

• Arrange for a remaining staff member or the Embassy cashier to make
petty cash payments on behalf of Peace Corps.

Evacuation Support Guide' January 2000 21

 1. Region Coordinates Communications Between PC/Washington.
Department of State. and the Evacuation Staff
The RD should coordinate all communications between the CD and PClWash­
ington to avoid multiple calls and inconsistent instructions. The RD should also
take the lead in coordinating communications with the responsible geographic
Bureau at DOS in Washington. Daily meetings of the task group will facilitate

•
communication between the various participants at PClWashington and
between participants abroad and in Washington.

2. Regional Director Coordinates Logistics and Makes Contingency Plans

The RD will make necessary logistical decisions relating to the evacuation as
they arise, in consultation with, as appropriate, the CD, the task group, the
Embassy, and DOS. The types of issues that may arise and the decisions that
will have to be made are discussed in Chapter II (Early Alert), at B.4.C.

3. Region Coordinates Activities of PC/Washington Offices

The RD must coordinate the activities of the various PClWashington involved
in the evacuation effort. Each of these offices will need up-to-date information
in order to do its job effectively, and will have information that other offices will
find helpful. Thus, clear communications between and among all participants
is essential.
Each office should develop its own standard operating procedures detailing the
steps that office will take in the event of an emergency or evacuation. The gen­
eral roles and responsibilities of the various offices, and those of the staff of the
receiving country, are summarized below. All those who may become involved
in an evacuation effort should be familiar with the general functions of other
offices.

22 Evacuation Support Guide· january 2000

•
22
• a. Office of Special Services (OSS)
The Office of Special Services provides support and assistance to Volunteers
and staff overseas and in the Region before, during, and after an evacuation
in a variety of ways. For example, oss:
• Acts as liaison between Volunteers and their families.
Evacuation

• Provides counseling and practical advice to staff

• Keeps track of vital information about Volunteers' and staff members'
health, welfare, location, families and special needs.
• Communicates that information as necessary.
• Designs and delivers counseling and debriefing sessions for the
Transition Conference.
At the earliest stages of a crisis, oss should identify a lead staff member to
serve as the liaison to the Region. This individual will:
• Attend all briefings of the task group; participate, when appropriate,
in telephone calls with the CD to obtain firsthand information; be
copied on faxes and cables from overseas regarding the health and wel­
fare of Volunteers.
• Work closely with the CDU and/or vSPS to draw up a list of Volunteers
in country and those known to be on home leave, emergency leave,
medevac, or otherwise out of the country.

•
• If and when appropriate, notify families about the status and location
of evacuees, keeping a log of all family contacts attempted and made.
He or she should also notify the switchboard as to where incoming
calls from friends and relatives should be routed and, if necessary,
arrange with IRM to set up a special number to take calls related to the
evacuation.
• Coordinate with the CDU and Office of Communications to make sure
that information released to families and the press is accurate and con­
sistent.
• With others in OSS, design counseling and debriefing sessions for the
Transition Conference. (For more information on the Transition
Conference, see Chapter IV.)
• If appropriate, travel to the evacuation site to provide counseling and
debriefing for staff and Volunteers.

b. Office of Medical Services (OMS)

OMS provides medical support during all stages of an evacuation and dur­
ing the Transition Conference. More specifically, OMS
• Anticipates and responds to all medical and health needs that arise in
the course of standfast, consolidation, evacuation, and the Transition
Conference.

•
• Provides liaison with and support to the PCMOS of the evacuating and
receiving countries.

Evacuation Support Guide· January 2000 23

Evacuation
•

•
•
Coordinates and supports cos physicals by PCMOS at the Transition
Conference.
Assists in getting necessary medical supplies to the receiving country.
Prepares and sends packets of medical information and forms for

Volunteers and for PCMOs to the receiving country's PCMO for distrib­

•
ution at the Transition Conference.

• Assures that the receiving country has adequate medical staff.

• Sends a representative to briefings of the task group.

c. Office of Communications
The Office of Communications coordinates press and public information. A
representative should trade daily news updates with the Region, the task

group, and 055.

d. Office of General Counsel (OGq

The Office of General Counsel should participate in the task group briefin­

gs and be consulted about policy decisions related to the evacuation and cos

of Volunteers. Issues arise in the course of an evacuation that may not be

immediately identifiable as potential legal problems by other offices. These

issues include the entitlements, rights, and responsibilities of the

•
Volunteers, staff, and the agency (which may vary depending upon the cir­

cumstances of the evacuation); and the authority of the agency to make cer­

tain payments and expenditures.

e. Office of Congressional Relations

The Office of Congressional Relations handles communications with the
Congress regarding the crisis and evacuation efforts. A representative

should attend the daily task group briefings.

f. Office of Planning, Budget. and Finance (OPBF)

OPBF, along with the BITs and IFO, will assist the Administrative Officers

at Post and in the receiving country with all financial matters related to the

evacuation and Transition Conference. It will also send a representative to

the task group briefings.

g. Office of Placement
The Office of Placement provides information and guidance to applicants
who have been invited to serve in the evacuated country and/or may be
affected by a recent or pending evacuation. Placement Officers will meet

with the Regional Programming and Training Advisor, and other Regional

staff as appropriate, to determine the options available to Invitees. If

•
requested by the RD, Placement should send a representative to the task

24 Evacuation Support Guide' January 2000

• group briefings. The RD may ask Placement to send a representative to the
Transition Conference to assist with transfer options.

h. Office of Transportation
The Office of Transportation provides all necessary travel support services.
Evacuation

This may involve making arrangements for travel out of the evacuating
country, during the Transition Conference, and from the Transition
Conference to each Volunteer's Home of Record. If these arrangements are
handled in-country, Transportation provides guidance on regulations and
policy issues. When requested by the RD, Transportation sends a represen­
tative to the task group briefings.

i. Office of Administrative Services

The Office of Administrative Services assists overseas posts and other offices
during evacuations and the Transition Conference. When requested by the
RD, it will send a representative to the task group briefings. During an evac­
uation, this office will:
• Arrange for delivery of medical, cos, and other logistical materials to
the receiving country.
• Provide logistical and administrative support during the Transition
Conference.

• •
•
•
•
Assist with emergency mailing needs within the U.S. or overseas.
Contact DOS to request suspension of diplomatic pouch services.
Suspend and cancel outstanding supply requests to the affected Post.
Consult with Region concerning the disposition of medical supplies
slated for Post.
• Assist in the closing of Post.

j. Volunteer and Staff Payroll Services (VSPS)

The Office of Volunteer and Staff Payroll Services (vsps) coordinates various
administrative activities related to Volunteers separating from Peace Corps
service. VSPS works with the Region to produce a roster of the names of
Volunteers who will participate in the Transition Conference and distrib­
utes the roster to other offices involved in the evacuation. It monitors all
deductions from readjustment allowances, calculates and arranges emer­
gency cash advances, and processes final payments to Volunteers. It also
ensures that Volunteers receive and sign PC-477 (certificates of non-indebt­
edness). If requested by the RD, vSPS will send a representative to the task
group briefings.

k. Returned Volunteer Services (RVS)

•
RVS provides career counseling and planning services as well as information
on job opportunities and graduate school programs. RVS staff will provide

Evacuation Support Guide· January 2000 25

Evacuation
material to be sent to the Transition Conference, which may include the RVS
services handout, career manuals, employment-related material, INKsheets,
copies of Hotline, and the National Peace Corps Association's Worldview.

I. Office of Contracts
•
The Office of Contracts assists during the Transition Conference by review­
ing contracting and purchasing options at the evacuation site and facilitat­
ing the procurement of goods and services that may be necessary.

m. Peace Corps Staff in the Receiving Country

The Peace Corps staff in the country that will host the Transition

Conference should work with the Region and the Transition Team in
preparing for the arrival of evacuated Volunteers and staff.
Prior to the evacuees' arrival, the receiving staff will:
• Identify a contact person in Washington during the evacuation period
and obtain telephone numbers, including after-hours numbers.
• Assign a duty officer at Post.
• Inform the host government directly or through the U.S. Embassy that
it will host the Transition Conference.
• Work with the host government's immigration and customs offices to

•
ensure that all individuals will have easy entry into the country, even if
they do not have passports and visas. (Complications may occur when
there are non-U.S. citizens in the evacuated group.)
Request an increase in imprest funds (both U.S. dollars and local cur­
rency) to ensure timely payments to Volunteers and local vendors, and
•
additional GTRS to be used for onward travel.
• Ascertain the total number of evacuees, including Volunteers, staff,
and staff family members, and their names, passport numbers, birth
dates, and nationalities.
• Obtain from PC/Washington a suggested script to use with the evac­
uees, welcoming them and giving them an outline of what is to take
place during the next few days. This is especially important if the
Transition Team has not yet arrived.
• Coordinate with the Transition Team Leader and/or Administrative
Officer to plan for the Transition Conference (see Chapter IV for more
information on preparing for the Transition Conference.)

4. Region Plans the Transition Conference

After Volunteers and staff are evacuated from a country, Peace Corps will stage

a Transition Conference. Preliminary planning for the Transition Conference

should begin as soon as an evacuation appears likely. The Region should appoint
a Transition Team Leader, a Workshop Facilitator, and an Administrative
Officer, who will work with staff in the receiving country and individuals from
•
26 Evacuation Support Guide· January 2000
• various PC/Washington offices - OSS, OMS, the Region, and Administrative
Services - to plan and run the Transition Conference.
The work of many offices is necessary to coordinate a Transition Conference.
Placement, OMS, RVS, OSS, and vSPS should be consulted in designing the content
of the Conference. Staff in the receiving country, Administrative Services,
Evacuation

Contracts, Communications, and Transportation may be called upon for logistical

support.
The Transition Conference is discussed in detail in Chapter IV.

•
Evacuation Support Guide· January 2000 27
 IV. TH ETRANSITION CON FERENCE
The "Transition Conference" is held immediately after evacuation of the Volunteers and
staff and is designed to prepare the Volunteers for cos, a transfer or a return to their
sites. Transition Conferences vary, but will almost always include a modified cos
Conference, as well as workshops and debriefings focused on the evacuation experience
•
itself. If it is probable that the evacuees will be able to return to country, the Transition
Conference may focus upon preparing Volunteers for re-entry and resuming service.

A. The Transition Conference Team

The number of staff who make up the Transition Conference Team and the roles they

play will vary depending on the complexity of the evacuation, the number of evac­

uees, and the Conference site. It is important to establish as early and as clearly as

possible the roles and responsibilities of the various members of the Transition Team

and appropriate lines of authority among the evacuated staff, the receiving staff, and

the Transition Team.

Staff from Washington or a third country - rather than the evacuated staff ­

should coordinate and conduct the conference workshops and handle the adminis­

trative matters. Often staff from the evacuated country are exhausted and in need of

support themselves. They may, however, with the approval of the Transition Team

Leader, provide advice and participate in the workshops.

•
1. Transition Team Leader

The Transition Team will be led by a Transition Team Leader, appointed by the

Region, who will have overall responsibility for the Conference. This will

include coordination of communications with PC/Washington, design and

delivery of support services, and oversight and leadership of all other Transition

Team members and evacuated staff. The Team Leader may be someone from the

Region, from overseas staff, or oss. Ideally, this person should have some prior
experience in planning and running a Transition Conference.

2. COS Workshop Facilitator

The cos Workshop Facilitator is in charge of the design and delivery of the cos
workshops to be provided to Volunteers after the initial meetings and debrief­

•
ings. The cos Workshop Facilitator, along with other Transition Team mem­
bers, plans the schedule and content of sessions, assembles the materials, facili­
tates many of the sessions, and arranges facilitators for other sessions.

28 Evacuation Support Guide' January 2000

• 3. Administrative Support
An Administrative Officer (AO) should be assigned to oversee and approve all
administrative matters related to the Conference. The AO should, if possible,
have the assistance ofa Logistics Coordinator. The administrative duties fall into
two categories:
The
Transition
Conference

• Logistical: setting up the Transition Conference, i.e., arranging and paying

for a Conference site, hotel rooms, meals, transportation, equipment, sup­
plies, and communications; and
• Administrative support: providing Volunteers and staff with necessary
suppon during the Conference and as they cos, transfer, or return to coun­
try, i.e., providing walkaround money, airline tickets or cash in lieu, phone
cards or e-mail access, the one-third readjustment check, information
regarding belongings and claims, and cos packets and assistance.
The AO should begin to prepare for the Transition Conference at the earliest
stages of alen. Before leaving for the Transition Conference site, the AO will
need to coordinate with IFO, the BITS, VSPS, OMS, and the AOS of the evacuating
and receiving Posts, to assure that sufficient cash, Volunteer information, forms,
vouchers, and medical supplies will be available at the Conference. cos packets
and a laptop computer with all necessary forms, manuals, cos materials, and

•
cable templates in electronic form will need to be brought or supplied from
Washington.
Once the AO arrives in the receiving country, he or she will need to set up an
office, establish communications with PCIWashington, locate and work with
local vendors, provide necessary equipment and supplies, and pay for meals,
transportation, and lodging. In addition, he or she will need to respond to the
many needs of the evacuated Volunteers and staff as they review their post-ser­
vice options and make travel plans.

B. Content of a Transition Conference

The most immediate needs of a group of evacuees are food, shelter, clothing, contact
with family, and medical and emotional suppon. Once those are met, the evacuees
will want information regarding their options and the means of exercising those
options - access to counseling, transponation, money, appropriate forms, and logis­
tical, medical, and administrative suppon.

The content of the Conference will vary depending upon whether and when a return
to country is anticipated and the degree of trauma experienced by the evacuees. On
the first day of the Conference, it is a good idea to discuss Volunteers' needs with
them and refine the Conference schedule if necessary. Plans may change as decisions
are made regarding the future of the Peace Corps program in the evacuated country.

• Evacuation Support Guide· January 2000 29

 The
Transition
Conference •
While each Conference has its own emphases, the following are the basic issues that
should be covered over a period of about five to seven days.

1. Debriefing and Counseling

ass counselors debrief small groups of Volunteers and staff, walking them
through their experiences and helping them process what has happened. A
debriefing is an organized approach to managing the stress reactions that follow
an evacuation. It aims to help individuals deal with the intense emotions com­
mon at such a time. In addition to debriefings, a Special Services Officer should

offer individual counseling throughout the conference.

•
2. Medical Sessions
Volunteers are given cos examinations and provided on-going medical atten­

tion at the Transition Conference. They are also provided vouchers for any fol­

low-up evaluations, including counseling sessions, they may need and are

informed of workers' compensation benefits available under the Federal

Employees' Compensation Act. Usually the PCMO of the receiving country

makes arrangements for providing for evacuees' medical needs at the Transition

Conference. If additional help is needed, the Office of Medical Services, in con­

sultation with the Region, may arrange to send additional medical staff.

3. Administrative Information
casing Volunteers should be given cos packets (which include Descriptions of
Service and certificates of non-indebtedness) and assistance in completing the
various necessary forms. They should also be provided walkaround money, cash
advances, the one-third adjustment allowance checks, and airplane tickets or cash
in lieu. They need to be provided information regarding medical insurance,
banking, reconciliation of overpaid living and leave allowances, recovery of

belongings, and claims for reimbursement of lost properry.

4. Placement Information
Available transfer, placement, cos, and early termination options will need to

•
be presented to Volunteers. These options will vary depending upon the cir­
cumstances of the evacuation and the prospects for returning to service in the
evacuated country, but may include:

30 Evacuation Support Guide· January 2000

• •
•
•

•
Resumption of service in the host country
Direct transfer to an assignment in another host country
Termination of Peace Corps service: resignation,
interrupted service, or early cos
Application for reenrollment to a new assignment
The
Transition
Conference

in another host country

A Placement Officer may attend the Transition Conference at the RD'S request
to provide Volunteers with guidance on their options and information for re­
enrollment. Placement will provide packets for distribution which include a
guide to re-enrolling for a new assignment, tailored to the particular host coun­
try program; Legal/Securiry Update forms; Staff Reference; and regular appli­
cant reference forms.

5. Employment, Career Planning, and Re-entry

For those Volunteers who will cos, a session on re-entry, career planning, and
employment opportunities may be offered. The Re-entry Manual, the Career
Resource Manual, and a handout on RVS services should be provided.

•
Evacuation Support Guide· January 2000 31
 v. AFTERMATH
After an evacuation, the Region must ensure that certain follow-up tasks are accom­
plished. Administrative and logistical duties outlast the immediacy of removing
Volunteers and staff from country and through a conference, but will vary depending
upon whether and when Peace Corps resumes operations in the evacuated country.
•
An evacuation presents an opportunity to reevaluate evacuation procedures and protocols
in the light of lessons learned from the evacuation. An agency-wide debriefing has
become standard, and provides a way for Regions and staff not directly involved in the
evacuation to learn from the event.

Finally, Volunteers who have been through an evacuation and have transferred to a new
country and assignment will need special attention and support during the months fol­
lowing an evacuation.

1. Assistance to and Transfer of Staff

The Region, in consultation with Human Resources Management, will coordi­
•
nate support and, where possible, transfer evacuated staff to other assignments.
Many issues relating to staff will arise in the wake of an evacuation - among
them the payment of evacuation allowance; shipment of personal effects; sup­
port for family members; and new work assignments as TDY or in new positions.
Issues will also arise with regard to staff who have remained in-country. Some
may continue to work for Peace Corps through the closing of the Post or dur­
ing an interim period before the program resumes. Delegations of authority
may be necessary to allow staff to handle some aspects of Post closure. The
Region may also need to take steps to facilitate HeN staff's dealings with the
Embassy during this period.

2. Closing Post
If the program is suspended indefinitely, the Region will coordinate the closing
of Post. If resumption of the program is anticipated, the Region will need to

•
make arrangements for managing on-going business until the program is up
and running again.

32 Evacuation Support Guide· January 2000

•
Procedures for a Non-Emergency Post Closing are contained in MS 341. The Aftermath
tasks that will need to be accomplished to close a Post after an evacuation occurs
will depend upon what Post was able to do before leaving country, security con­
ditions in country, availability of host country national staff remaining in coun­
try, and the ability ofV.S. direct hires to go back into country to complete the
necessary tasks. Issues that may arise during the closing of a Post or during a
temporary suspension of the program include:
• Delegations of authority to remaining staff
• Transport of staff vehicles
• Severance pay for PSCs whose contracts ended due to the evacuation
• Recommendations for staff awards
• Reassignment of direct hires
• Embassy relations with remaining Peace Corps staff

3. Recovering Belongings and/or Settling Claims

The personal property of Volunteers and staff often gets left behind during an
evacuation. Sometimes this property is recoverable after the evacuation; often it
is not. The Region will need to coordinate the recovery of the goods when that
is possible. The Region, OPBF, and OGe will process claims from Volunteers and
staff for reimbursement of unrecoverable losses pursuant to Manual Sections

• 235 and 768.

B. Debrief of an Evacuation
The Regional Director should convene a debriefing session in Pc/Washington with­
in a few weeks of the evacuation. The purpose is to hear and discuss what happened
in different locations, how and why certain decisions were made, what went well, and
what did not go well. A summary of the lessons learned from each evacuation should
be written and kept by the Region and oss so that it can be reviewed by those who
may be participants in a future evacuation.

It is useful to have as many of the participants as possible at the debriefing so that

various perspectives are heard. Evacuated staff members and their spouses, if they
were involved in the evacuation, should be included. If any evacuated Volunteers are
in Washington, they may also be invited.

C. Providing Support to Transferred Evacuated Volunteers

Volunteers who choose to transfer to a second country after an evacuation will
require some special attention in adjusting to a new assignment after what may have
been a traumatic experience, and ongoing support to deal with longer-term effects
of the evacuation.

• Evacuation Support GuiQe . January 2000 33

Aftermath Reports to the Office of Special Services from past evacuations indicate that some
reactions are common among evacuated Volunteers. They include sadness over the
abrupt end of relationships, work, and lifestyle without the opportunity for closure;
guilt for abandoning people in their communities and fear for the safety of those left
behind; regret at leaving projects uncompleted and commitments unmet; disap­
•
pointment about plans and hopes that were unfulfilled; difficulty in establishing a
new group network; and disbelief about their present situation and an anxiety about
their future.

Staff support for evacuated Volunteers who have transferred to a new Post is critical,
especially during the initial period of adjustment. Peer support also plays an inte­
gral role in helping Volunteers in their transition to their new countries of service.
Soon after their arrival, Volunteers should be given the opportunity to talk to a staff
member about their experience in their first country, as well as during the evacua­
tion and Transition Conference, and to articulate their needs. Staff should be aware
that crises tend to bring up previously untesolved issues, especially those involving
grief and loss. While the Transition Conference provides the opportunity for
Volunteers to meet with a counselor individually and in small groups to deal with
their immediate mental health needs, most Volunteers will continue coming to
terms with their evacuation for weeks or months. Staff who feel ill-equipped to deal
with these issues are encouraged to seek assistance from oss.

34 Eva(uatignSupport~GOide' January 2000

•

• VI. CONCLUSION
This Evacuation Support Guide sets forth the roles and responsibilities of various offices
within the Peace Corps in the event of a post evacuation. Each represented office is
expected to thoroughly understand its responsibilities and put in place the skilled per­
sonnel and resources necessary to prepare for and respond to a crisis at post. Among
, '.,.

these resources are:

• Procedural guidelines
• Standard forms
• Sample templates
• Appropriate staff training/orientation

The Office of the Coordinator for Volunteer Safety and Overseas Security will work with
the various offices to develop these resources. These agency-wide resources will be doc­
umented, collected and maintained in a single evacuation reference binder. Evacuation
reference binders will be distributed to the Director's Office, each Regional Director's
office, the Office of Special Services, and the Office of the Coordinator for Volunteer
Safety and Overseas Security.

Any questions or feedback are most welcome, and should be directed the Coordinator
for Volunteer Safety and Overseas Security.

•
Evacuation SuppoF.:t,Guidtr JanuaT-¥2000 35
•